The following essay co-authored by Stratfor founder/CEO George Friedman is reprinted by permission from Stratfor:
The U.S. Challenge in Afghanistan
By George Friedman & Reva Bhalla
October 20, 2009
The decision over whether to send more U.S. troops into Afghanistan
may wait until the contested Afghan election is resolved, U.S.
officials said Oct. 18. The announcement comes as U.S. President Barack Obama is approaching a decision on the war in Afghanistan.
During the 2008 U.S. presidential campaign, Obama argued that Iraq was
the wrong war at the wrong time, but Afghanistan was a necessary war.
His reasoning went that the threat to the United States came from al
Qaeda, Afghanistan had been al Qaeda’s sanctuary, and if the United
States were to abandon Afghanistan, al Qaeda would re-establish itself
and once again threaten the U.S. homeland. Withdrawal from Afghanistan
would hence be dangerous, and prosecution of the war was therefore
necessary.
After Obama took office, it became necessary to define a
war-fighting strategy in Afghanistan. The most likely model was based
on the one used in Iraq by Gen. David Petraeus, now head of U.S.
Central Command, whose area of responsibility covers both Afghanistan
and Iraq. Paradoxically, the tactical and strategic framework for
fighting the so-called “right war” derived from U.S. military successes
in executing the so-called “wrong war.” But grand strategy, or
selecting the right wars to fight, and war strategy, or how to fight
the right wars, are not necessarily linked.
Afghanistan, Iraq and the McChrystal Plan
Making sense of the arguments over Afghanistan requires an
understanding of how the Iraq war is read by the strategists fighting
it, since a great deal of proposed Afghan strategy involves
transferring lessons learned from Iraq. Those strategists see the Iraq
war as having had three phases. The first was the short conventional
war that saw the defeat of Saddam Hussein’s military. The second was
the period from 2003-2006 during which the United States faced a Sunni
insurgency and resistance from the Shiite population, as well as a
civil war between those two communities. During this phase, the United
States sought to destroy the insurgency primarily by military means
while simultaneously working to scrape a national unity government
together and hold elections. The third phase, which began in late 2006,
was primarily a political phase. It consisted of enticing Iraqi Sunni
leaders to desert the foreign jihadists in Iraq, splitting the Shiite
community among its various factions, and reaching political — and
financial — accommodations among the various factions. Military
operations focused on supporting political processes, such as
pressuring recalcitrant factions and protecting those who aligned with
the United States. The troop increase — aka the surge — was designed to
facilitate this strategy. Even more, it was meant to convince Iraqi
factions (not to mention Iran) that the United States was not going to
pull out of Iraq, and that therefore a continuing American presence
would back up guarantees made to Iraqis.
It is important to understand this last bit and its effect on
Afghanistan. As in Iraq, the idea that the United States will not
abandon local allies by withdrawing until Afghan security forces could
guarantee the allies’ security lies at the heart of U.S. strategy in
Afghanistan. The premature withdrawal of U.S. troops from Iraq, e.g.,
before local allies’ security could be guaranteed, would undermine U.S.
strategy in Afghanistan. To a great extent, the process of U.S.
security guarantees in Afghanistan depends on the credibility of those
guarantees: Withdrawal from Iraq followed by retribution against U.S.
allies in Iraq would undermine the core of the Afghan strategy.
U.S. Gen. Stanley McChrystal’s strategy in Afghanistan ultimately is
built around the principle that the United States and its NATO allies
are capable of protecting Afghans prepared to cooperate with Western
forces. This explains why the heart of McChrystal’s strategy involves
putting U.S. troops as close to the Afghan people as possible. Doing so
will entail closing many smaller bases in remote valleys — like the
isolated outpost recently attacked in Nuristan province — and opening
bases in more densely populated areas.
McChrystal’s strategy therefore has three basic phases. In phase
one, his forces would fight their way into regions where a large
portion of the population lives and where the Taliban currently
operates, namely Kabul, Khost, Helmand and Kandahar provinces. The
United States would assume a strategic defensive posture in these
populated areas. Because these areas are essential to the Taliban,
phase two would see a Taliban counterattack in a bid to drive
McChrystal’s forces out, or at least to demonstrate that the U.S.
forces cannot provide security for the local population. Paralleling
the first two phases, phase three would see McChrystal using his
military successes to forge alliances with indigenous leaders and their
followers.
It should be noted that while McChrystal’s traditional
counterinsurgency strategy would be employed in populated areas, U.S.
forces would also rely on traditional counterterrorism tactics in more
remote areas where the Taliban have a heavy presence and can be pursued
through drone strikes. The hope is that down the road, the strategy
would allow the United States to use its military successes to fracture
the Taliban, thereby encouraging defections and facilitating political
reconciliation with Taliban elements driven more by political power
than ideology.
There is a fundamental difference between Iraq and Afghanistan,
however. In Iraq, resistance forces rarely operated in sufficient
concentrations to block access to the population. By contrast, the
Taliban on several occasions have struck with concentrations of forces
numbering in the hundreds, essentially at company-size strength. If
Iraq was a level one conflict, with irregular forces generally refusing
conventional engagement with coalition forces, Afghanistan is beginning
to bridge the gap from a level one to a level two conflict, with the
Taliban holding territory with forces both able to provide conventional
resistance and to mount some offensives at the company level (and
perhaps at the battalion level in the future). This means that
occupying, securing and defending areas such that the inhabitants see
the coalition forces as defenders rather than as magnets for conflict
is the key challenge.
Adding to the challenge, elements of McChrystal’s strategy are in
tension. First, local inhabitants will experience multilevel conflict
as coalition forces move into a given region. Second, McChrystal is
hoping that the Taliban goes on the offensive in response. And this
means that the first and second steps will collide with the third,
which is demonstrating to locals that the presence of coalition forces
makes them more secure as conflict increases (which McChrystal
acknowledges will happen). To convince locals that Western forces
enhance their security, the coalition will thus have to be stunningly
successful both at defeating Taliban defenders when they first move in
and in repulsing subsequent Taliban attacks.
In its conflict with the Taliban, the coalition’s main advantage is
firepower, both in terms of artillery and airpower. The Taliban must
concentrate its forces to attack the coalition; to counter such
attacks, the weapons of choice are airstrikes and artillery. The
problem with both of these weapons is first, a certain degree of
inaccuracy is built into their use, and second, the attackers will be
moving through population centers (the area held by both sides is
important precisely because it has population). This means that air-
and ground-fire missions, both important in a defensive strategy, run
counter to the doctrine of protecting population.
McChrystal is fully aware of this dilemma, and he has therefore
changed the rules of engagement to sharply curtail airstrikes in areas
of concentrated population, even in areas where U.S. troops are in
danger of being overrun. As McChrystal said in a recent interview,
these rules of engagement will hold “Even if it means we are going to
step away from a firefight and fight them another day.”
This strategy poses two main challenges. First, it shifts the burden
of the fighting onto U.S. infantry forces. Second, by declining combat
in populated areas, the strategy runs the risk of making the populated
areas where political arrangements might already be in place more
vulnerable. In avoiding air and missile strikes, McChrystal avoids
alienating the population through civilian casualties. But by declining
combat, McChrystal risks alienating populations subject to Taliban
offensives. Simply put, while airstrikes can devastate a civilian
population, avoiding airstrikes could also devastate Western efforts,
as local populations could see declining combat as a betrayal.
McChrystal is thus stuck between the proverbial rock and a hard place
on this one.
One of his efforts at a solution has been to ask for more troops.
The point of these troops is not to occupy Afghanistan and impose a new
reality through military force, which is impossible (especially given
the limited number of troops the United States is willing to dedicate
to the problem). Instead, it is to provide infantry forces not only to
hold larger areas, but to serve as reinforcements during Taliban
attacks so the use of airpower can be avoided. Putting the onus of this
counterinsurgency on the infantry, and having the infantry operate
without airpower, is radical departure in U.S. fighting doctrine since
World War II.
Seismic Shift in War Doctrine
Geopolitically, the United States fights at the end of a long supply
line. Moreover, U.S. forces operate at a demographic disadvantage. Once
in Eurasia, U.S. forces are always outnumbered. Infantry-on-infantry
warfare is attritional, and the United States runs out of troops before
the other side does. Infantry warfare does not provide the United
States any advantage, and in fact, it places the United States at a
disadvantage. Opponents of the United States thus have larger numbers
of fighters; greater familiarity and acclimation to the terrain; and
typically, better intelligence from countrymen behind U.S. lines. The
U.S. counter always has been force multipliers — normally artillery and
airpower — capable of destroying enemy concentrations before they close
with U.S. troops. McChrystal’s strategy, if applied rigorously, shifts
doctrine toward infantry-on-infantry combat. His plan assumes that
superior U.S. training will be the force multiplier in Afghanistan (as
it may). But that assumes that the Taliban, a light infantry force with
numerous battle-hardened formations optimized for fighting in
Afghanistan, is an inferior infantry force. And it assumes that U.S.
infantry fighting larger concentrations of Taliban forces will
consistently defeat them.
Obviously, if McChrystal drives the Taliban out of secured areas and
into uninhabited areas, the United States will have a tremendous
opportunity to engage in strategic bombardment both against Taliban
militants themselves and against supply lines no longer plugged into
populated areas. But this assumes that the Taliban would not reduce its
operations from company-level and higher assaults down to
guerrilla-level operations in response to being driven out of
population centers. If the Taliban did make such a reduction, it would
become indistinguishable from the population. This would allow it to
engage in attritional warfare against coalition forces and against the
protected population to demonstrate that coalition forces can’t protect
them. The Taliban already has demonstrated the ability to thrive in
both populated and rural areas of Afghanistan, where the terrain favors
the insurgent far more than the counterinsurgent.
The strategy of training Afghan soldiers and police to take up the
battle and persuading insurgents to change sides faces several
realities. The Taliban has an excellent intelligence service built up
during the period of its rule and afterward, allowing it to populate
the new security forces with its agents and loyalists. And while
persuading insurgents to change sides certainly can happen, whether it
can happen to the extent of leaving the Taliban materially weakened
remains in doubt. In Iraq, this happened not because of individual
changes, but because regional ethnic leadership — with their own
excellent intelligence capabilities — changed sides and drove out
opposing factions. Individual defections were frequently liquidated.
But Taliban leaders have not shown any inclination for changing
sides. They do not believe the United States is in Afghanistan to stay.
Getting individual Taliban militants to change sides creates an
intelligence-security battle. But McChrystal is betting that his forces
will form bonds with the local population so deep that the locals will
provide intelligence against Taliban forces operating in the region.
The coalition must thus demonstrate that the risks of defection are
dwarfed by the advantages. To do this, the coalition security and
counterintelligence must consistently and effectively block the
Taliban’s ability to identify, locate and liquidate defenders. If
McChrystal cannot do that, large-scale defection will be impossible,
because well before such defection becomes large scale, the first
defectors will be dead, as will anyone seen by the Taliban as a
collaborator.
Ultimately, the entire strategy depends on how you read Iraq. In
Iraq, a political decision was made by an intact Sunni leadership able
to enforce its will among its followers. Squeezed between the foreign
jihadists who wanted to usurp their position and the Shia, provided
with political and financial incentives, and possessing their own
forces able to provide a degree of security themselves, the Sunni
leadership came to the see the Americans as the lesser evil. They
controlled a critical mass, and they shifted. McChrystal has made it
clear that the defections he expects are not a Taliban faction whose
leadership decides to shift, but Taliban soldiers as individuals or
small groups. That isn’t ultimately what turned the Iraq war but
something very different — and quite elusive in counterinsurgency. He
is looking for retail defections to turn into a strategic event.
Moreover, it seems much too early to speak of the successful
strategy in Iraq. First, there is increasing intracommunal violence in
anticipation of coming elections early next year. Second, some 120,000
U.S. forces remain in Iraq to guarantee the political and security
agreements of 2007-2008, and it is far from clear what would happen if
those troops left. Finally, where in Afghanistan there is the Pakistan
question, in Iraq there remains the Iran question. Instability thus
becomes a cross-border issue beyond the scope of existing forces.
The Pakistan situation is particularly problematic. If the strategic
objective of the war in Afghanistan is to cut the legs out from under
al Qaeda and deny these foreign jihadists sanctuary, then what of the
sanctuaries in Pakistan’s tribal belt where high-value al Qaeda targets
are believed to be located? Pakistan is fighting its share of jihadists
according to its own rules; the United States cannot realistically
expect Islamabad to fulfill its end of the bargain in containing al
Qaeda. The primary U.S. targets in this war are on the wrong side of
the border, and in areas where U.S. forces are not free to operate. The
American interest in Afghanistan is to defeat al Qaeda and prevent the
emergence of follow-on jihadist forces. The problem is that regardless
of how secure Afghanistan is, jihadist forces can (to varying degrees)
train and plan in Pakistan, Somalia, Yemen, Indonesia — or even
Cleveland for that matter. Securing Afghanistan is thus not necessarily
a precondition for defeating al Qaeda.
Iraq is used as the argument in favor of the new strategy in
Afghanistan. What happened in Iraq was that a situation that was
completely out of hand became substantially less unstable because of a
set of political accommodations initially rejected by the Americans and
the Sunnis from 2003-2006. Once accepted, a disastrous situation became
an unstable situation with many unknowns still in place.
If the goal of Afghanistan is to forge the kind of tenuous political
accords that govern Iraq, the factional conflicts that tore Iraq apart
are needed. Afghanistan certainly has factional conflicts, but the
Taliban, the main adversary, does not seem to be torn by them. It is
possible that under sufficient pressure such splits might occur, but
the Taliban has been a cohesive force for a generation. When it has
experienced divisions, it hasn’t split decisively.
On the other hand, it is not clear that Western forces in
Afghanistan can sustain long-term infantry conflict in which the
offensive is deliberately ceded to a capable enemy and where airpower’s
use is severely circumscribed to avoid civilian casualties, overturning
half a century of military doctrine of combined arms operations.
The Bigger Picture
The best argument for fighting in Afghanistan is powerful and
similar to the one for fighting in Iraq: credibility. The abandonment
of either country will create a powerful tool in the Islamic world for
jihadists to argue that the United States is a weak power. Withdrawal
from either place without a degree of political success could
destabilize other regimes that cooperate with the United States. Given
that, staying in either country has little to do with strategy and
everything to do with the perception of simply being there.
The best argument against fighting in either country is equally
persuasive. The jihadists are right: The United States has neither the
interest nor forces for long-term engagements in these countries.
American interests go far beyond the Islamic world, and there are many
present (to say nothing of future) threats from outside the region that
require forces. Overcommitment in any one area of interest at the
expense of others could be even more disastrous than the consequences
of withdrawal.
In our view, Obama’s decision depends not on choosing between
McChrystal’s strategy and others, but on a careful consideration of how
to manage the consequences of withdrawal. An excellent case can be made
that now is not the time to leave Afghanistan, and we expect Obama to
be influenced by that thinking far more than by the details of
McChrystal’s strategy. As McChrystal himself points out, there are many
unknowns and many risks in his own strategy; he is guaranteeing nothing.
Reducing American national strategy to the Islamic world, or worse,
Afghanistan, is the greater threat. Nations find their balance, and the
heavy pressures on Obama in this decision basically represent those
impersonal forces battering him. The question he must ask himself is
simple: In what way is the future of Afghanistan of importance to the
United States? The answer that securing it will hobble al Qaeda is
simply wrong. U.S. Afghan policy will not stop a global terrorist
organization; terrorists will just go elsewhere. The answer that U.S.
involvement in Afghanistan is important in shaping the Islamic world’s
sense of American power is better, but even that must be taken in
context of other global interests.
Obama does not want this to be his war. He does not want to be
remembered for Afghanistan the way George W. Bush is remembered for
Iraq or Lyndon Johnson is for Vietnam. Right now, we suspect Obama
plans to demonstrate commitment, and to disengage at a more politically
opportune time. Johnson and Bush showed that disengagement after
commitment is nice in theory. For our part, we do not think there is an
effective strategy for winning in Afghanistan, but that McChrystal has
proposed a good one for “hold until relieved.” We suspect that Obama
will hold to show that he gave the strategy a chance, but that the
decision to leave won’t be too far off.